Thursday 21st September 2023
(1 year, 3 months ago)
Lords ChamberLevelling-up and Regeneration Act 2023 View all Levelling-up and Regeneration Act 2023 Debates Read Hansard Text Watch Debate Amendment Paper: HL Bill 173-I Marshalled list for Third Reading - (20 Sep 2023)
The Lord Privy Seal (Lord True) (Con)
My Lords, I have it in command from His Majesty the King and His Royal Highness the Prince of Wales to acquaint the House that they, having been informed of the purport of the Levelling-up and Regeneration Bill, have consented to place their interests, so far as they are affected by the Bill, at the disposal of Parliament for the purposes of the Bill.
Earl Howe (Con)
My Lords, before we begin Third Reading, I will make a statement on legislative consent. A small number of the provisions in the Levelling-up and Regeneration Bill apply to England and Wales, and a number also apply to Scotland and/or Northern Ireland. There are, as a consequence, provisions in the Bill that engage the legislative consent process in the Scottish Parliament, Senedd Cymru and the Northern Ireland Assembly. Throughout the preparation and passage of the Bill, we have worked closely with each of the devolved Administrations, and I pay tribute to officials and Ministers in Scotland, Wales and Northern Ireland for their constructive engagement and support.
I am pleased to report that the Welsh Government have issued legislative consent support for the Bill in principle. They will hold their legislative consent vote in the Senedd in October. We will continue to engage the Scottish Government to endeavour to reach an agreement so that they are able to recommend that legislative consent be given by the Scottish Parliament.
Due to the continued absence of the Northern Ireland Assembly and Executive, a legislative consent Motion cannot, in that case, be secured. I reassure noble Lords that the Government will continue to engage with officials from the Northern Ireland Civil Service, as well as the Northern Ireland Executive once it is sitting.
With the leave of the House, on behalf of my noble friend Lady Scott of Bybrook and at her request, I beg to move that the Bill be now read a third time.
Clause 157: Power to specify environmental outcomes
Amendment 1
Member’s explanatory statement
This amendment fulfils an undertaking made at Report stage and clarifies that the definition of “environmental protection” includes the protection of chalk streams from abstraction and pollution.
Earl Howe (Con)
My Lords, I will also speak to the other amendments in the name of my noble friend Lady Scott of Bybrook. On Report, my noble friend Lord Trenchard tabled an amendment on chalk streams that highlighted their special status and the passion across the House for protecting these habitats further. Although we supported the intent of the amendment, we needed to fix some technical issues within the drafting. We committed to bring forward an amendment at Third Reading to provide clarity and reassurance on chalk streams in the context of environmental outcomes reports.
Therefore, Amendments 1 and 2 would include chalk streams in the definitions of “environmental protection” and “natural environment”. This means that, when setting the outcomes that will drive the new regime, the Government can ensure the protection of chalk streams, including from the effects of physical damage, abstraction and pollution. I thank my noble friend for working with us on this amendment to improve the health of England’s chalk streams.
Following the Government’s statement during the previous stage of the Bill, I am bringing forward Amendment 9, which relates to national parks and areas of outstanding natural beauty, collectively known as “protected landscapes”. This amendment addresses the issues raised on Report by my noble friend Lord Randall of Uxbridge. It will enhance protected landscape management plans and bolster the contribution of partners to help deliver them, ensuring better outcomes for people and nature. As home to some of our most iconic and beautiful places, protected landscapes are crucial delivery partners that are at the heart of our work to unleash rural prosperity and create a network of beautiful and nature-rich spaces that can be enjoyed by all parts of society.
We have made technical drafting amendments to ensure that the amendment operates correctly in practice. This includes amending the individual Acts to strengthen the duty on relevant authorities to contribute to delivery of the purposes of protected landscapes and creating a power to make regulations. The Secretary of State now has the power to bring forward these regulations, and the Government are committed to doing so in a timely manner. I know this is an issue dear to many noble Lords, including my noble friend Lord Randall, who has worked tirelessly on this matter. As such, I hope that noble Lords will lend support to this amendment.
I turn to Amendments 3, 4, 10, 11 and 16 to 54. As noble Lords will recall, this House was not content to accept government Amendments 247YY and 247YYA on Report, which related to nutrients. It is therefore necessary for the Government to reverse any amendments that were consequential on Amendments 247YY and 247YYA, and to fill legislative gaps that have arisen due to Amendments 247YY and 247YYA not being agreed to. This includes amendments which will provide a clear link between new Section 96G of the Water Industry Act, which enables water companies to take a catchment-permitting approach when upgrading waste- water treatment works, and new Regulations 85A, 85B and 110A in the habitats regulations, which direct local planning authorities to assume that the proposed upgrades are certain for the purpose of planning decisions.
The Government have also tabled minor and technical Amendments 10 and 11. Clause 256 of the Bill changes all references to “retained direct EU legislation” in this Bill to “assimilated direct legislation” in line with Section 5 of the retained EU law Act, as that Bill received Royal Assent during the passage of the Levelling-up and Regeneration Bill. One of these references was to the draft amendments concerning nutrient neutrality that were defeated by a vote in the House of Lords on 13 September. This amendment removes the reference.
Noble Lords will recall that we agreed amendments on Report in the name of my noble friend Lord Moylan, in relation to a road user charging scheme in London. The effect will be to enable London borough councils that are meeting their air quality standards and objectives under the Environment Act 1995, or have an approved plan to do so, to opt out of certain road user charging schemes proposed by Transport for London. This is a focused, sensible and proportionate rebalancing of mayoral powers with borough interests in the capital.
This group of government amendments is minor and technical in nature, but they are important none the less. The collective effect of Amendments 5, 7 and 8 is to clarify the eligibility of relevant London borough councils seeking to opt out of certain future road user charging schemes. They improve the drafting by ensuring that the provisions cover each case that could arise in relation to a London borough council. For example, where a council was eligible when it first gave notice but subsequently became ineligible on account of the introduction of an air quality management area, it will have the opportunity to submit an alternative plan during the opt-out period, thereby opening up the opportunity to become potentially eligible again. The collective effect of Amendments 13 and 14 is to correct the extent of Clause 253 so that it extends to England, Wales and Scotland, reflecting the extent of the Greater London Authority Act 1999, which it amends. The concept of application is distinct from that of extent—and these provisions will, of course, in practice apply only to London.
Lastly, Amendment 6 will ensure consistency in the language used and avoid any potential misunderstanding that opt-out notices can be given outside of the defined 10-week opt-out period. I beg to move.
The Earl of Caithness (Con)
My Lords, first, I ask my noble friend to send our best wishes to our noble friend Lady Scott of Bybrook. Secondly, I thank him very much for honouring the commitment made by the noble Lord, Lord Benyon, with regard to Amendments 1 and 2 on chalk streams, on behalf of my noble friend Lord Trenchard, who apologises for not being here himself. We are particularly grateful that this has happened, and I am equally grateful that nutrient neutrality is as it was. On the one hand, the Government were going to protect chalk streams but, on the other hand, they were going to increase pollution. So, I think that chalk streams have a better chance now and I am grateful to my noble friend.
Baroness Bakewell of Hardington Mandeville (LD)
My Lords, I also thank the Minister for his introductory comments. Amendments 1 and 2 on chalk streams are to be welcomed and I thank the noble Viscount, Lord Trenchard, for his work on this and for pursuing it to make absolutely certain that the Government saw its importance. I am sure that if my late noble friend Lord Chidgey were here, he would also welcome this, as he was a great champion of chalk streams.
The amendments on national parks give security to protected landscapes and assist those who run them in ensuring that they are preserved for generations to enjoy. I support the comments of the noble Baroness, Lady Jones of Whitchurch, on national parks not being able to work outside their boundaries. I hope that the Government will look at this and perhaps reconsider.
Amendments 3, 10, 11 and 16 to 24 on the nutrients issue are all consequential tidying-up amendments, but they are to be welcomed. I thank the Minister and the Government for their work on this and for what seems a sensible way forward.
Earl Howe (Con)
My Lords, I am grateful to all noble Lords for their welcome for these amendments. I note the comments of the noble Baroness, Lady Jones of Whitchurch, in particular. On the specific question that she asked about the meaning of “in a timely manner”, I fear I cannot go much further than that except to express the Government’s full intention to bring these provisions into operation as soon as we are ready to do so and as soon as the regulations have been drafted. If there is anything further that I can tell her, having received further advice, I will of course write to her.
Member’s explanatory statement
This amendment fulfils an undertaking made at Report stage and clarifies that the definition of “natural environment” includes chalk streams.
“(iv) where a direction relating to the plant and the related nutrient pollution standard is made or revoked under regulation 85C or 110B of the Conservation of Habitats and Species Regulations 2017 (S.I. 2017/1012) (disapplication of assumption that the plant will meet the standard on and after the upgrade date or applicable date), that fact and the date on which the direction or revocation takes effect;”Member’s explanatory statement
This amendment reinstates the requirement on the Secretary of State to maintain and publish online a document including the dates on which any direction or revocation made under the Conservation of Habitats and Species Regulations 2017 and relating to a particular plant takes effect. The requirement was removed at Report stage in connection with other amendments that were not agreed.
Member’s explanatory statement
This amendment reinstates the wording in Clause 174 introducing Schedule 16, which was amended at Report stage in connection with other amendments that were not agreed.
Member’s explanatory statement
This amendment amends Clause 253 (road user charging schemes in London), which enables London borough councils to opt out from certain road user charging schemes, to improve the drafting by ensuring that the provisions cover each case which could arise in relation to a London borough council.
“Protected landscapes(1) The National Parks and Access to the Countryside Act 1949 is amended in accordance with subsections (2) and (3).(2) In section 4A (application of Part 2 of Act to Wales), after subsection (2) insert—“(3) Subsection (1) does not apply in relation to section 11A(1A) or (1B) (duty to further statutory purposes of National Parks in England).”(3) In section 11A (duty to have regard to purposes of National Parks)—(a) in the heading, for “to have regard” substitute “in relation”;(b) after subsection (1), insert—“(1A) In exercising or performing any functions in relation to, or so as to affect, land in any National Park in England, a relevant authority other than a devolved Welsh authority must seek to further the purposes specified in section 5(1) and if it appears that there is a conflict between those purposes, must attach greater weight to the purpose of conserving and enhancing the natural beauty, wildlife and cultural heritage of the area comprised in the National Park.(1B) In exercising or performing any functions in relation to, or so as to affect, land in any National Park in England, a devolved Welsh authority must have regard to the purposes specified in section 5(1) and if it appears that there is a conflict between those purposes, must attach greater weight to the purpose of conserving and enhancing the natural beauty, wildlife and cultural heritage of the area comprised in the National Park.”;(c) in subsection (2), after “Park”, in the first place it occurs, insert “in Wales”;(d) after that subsection, insert—“(2A) The Secretary of State may by regulations make provision about how a relevant authority is to comply with the duty under subsection (1A) (including provision about things that the authority may, must or must not do to comply with the duty).”(e) after subsection (5), insert—“(5A) In this section, “devolved Welsh authority” has the same meaning as in the Government of Wales Act 2006 (see, in particular, section 157A of that Act).”(4) After section 66 of the Environment Act 1995 (national park management plans), insert—“66A National Park Management Plans (England): further provision(1) The Secretary of State may by regulations make provision—(a) requiring a National Park Management Plan for a park in England to contribute to the meeting of any target set under Chapter 1 of Part 1 of the Environment Act 2021;(b) setting out how such a Management Plan must contribute to the meeting of such targets;(c) setting out how such a Management Plan must further the purposes specified in section 5(1) of the National Parks and Access to the Countryside Act 1949.(2) The Secretary of State may by regulations make provision—(a) requiring a relevant authority other than a devolved Welsh authority to contribute to the preparation, implementation or review of a National Park Management Plan for a park in England;(b) setting out how such a relevant authority may or must do so.(4) In this section—“devolved Welsh authority” has the same meaning as in the Government of Wales Act 2006 (see, in particular, section 157A of that Act);“relevant authority” has the same meaning as in section 11A of the National Parks and Access to the Countryside Act 1949.66B Regulations under section 66A: procedure etc(1) The power to make regulations under section 66A—(a) is exercisable by statutory instrument;(b) includes power to make different provision for different purposes or different areas;(c) includes power to make incidental, supplementary, consequential, transitional, transitory or saving provision.(2) A statutory instrument containing regulations under section 66A is subject to annulment in pursuance of a resolution of either House of Parliament.”(5) The Countryside and Rights of Way Act 2000 is amended in accordance with subsections (6) to (10).(6) In section 85 (general duty of public bodies etc)— (a) before subsection (1), insert—“(A1) In exercising or performing any functions in relation to, or so as to affect, land in an area of outstanding natural beauty in England, a relevant authority other than a devolved Welsh authority must seek to further the purpose of conserving and enhancing the natural beauty of the area of outstanding natural beauty.(A2) In exercising or performing any functions in relation to, or so as to affect, land in an area of outstanding natural beauty in England, a devolved Welsh authority must have regard to the purpose of conserving and enhancing the natural beauty of the area of outstanding natural beauty.”;(b) in subsection (1), after “beauty”, in the first place it occurs, insert “in Wales”;(c) after that subsection, insert—“(1A) The Secretary of State may by regulations make provision about how a relevant authority is to comply with the duty under subsection (A1) (including provision about things that the authority may, must or must not do to comply with the duty).”(d) in subsection (3), after “(2)—” insert—““devolved Welsh authority” has the same meaning as in the Government of Wales Act 2006 (see, in particular, section 157A of that Act);”.(7) In section 87 (general purposes and powers)—(a) before subsection (1) insert—“(A1) It is the duty of a conservation board established in relation to an area in England, in the exercise of their functions, to seek to further—(a) the purpose of conserving and enhancing the natural beauty of the area of outstanding natural beauty, and(b) the purpose of increasing the understanding and enjoyment by the public of the special qualities of the area of outstanding natural beauty,but if it appears to the board that there is a conflict between those purposes, they are to attach greater weight to the purpose mentioned in paragraph (a).”;(b) in subsection (1), after “board”, in the first place it occurs, insert “established in relation to an area in Wales”;(c) in subsection (2), for the words from “while” to “(1)” substitute “whilst fulfilling their duties under subsection (A1) or (1) (as the case may be)”.(8) In section 90 (supplementary provisions relating to management plans), after subsection (2) insert—“(2A) The Secretary of State may by regulations make provision—(a) requiring a plan under section 89 relating to an area of outstanding natural beauty in England to contribute to the meeting of any target set under Chapter 1 of Part 1 of the Environment Act 2021;(b) setting out how such a plan must contribute to the meeting of such targets;(c) setting out how a plan under section 89 relating to an area of outstanding natural beauty in England must further the purpose of conserving and enhancing the natural beauty of that area.”(9) After that section insert—“90A Duty of public bodies etc in relation to management plans(1) The Secretary of State may by regulations make provision—(a) requiring a relevant authority other than a devolved Welsh authority to contribute to the preparation, implementation or review of a plan under section 89 relating to an area of outstanding natural beauty in England; (b) setting out how such a relevant authority may or must do so.(2) In this section—“devolved Welsh authority” has the same meaning as in the Government of Wales Act 2006 (see, in particular, section 157A of that Act);“relevant authority” has the same meaning as in section 85.”(10) After section 91 insert—“91A Regulations under Part 4(1) A power to make regulations under this Part—(a) is exercisable by statutory instrument;(b) includes power to make different provision for different purposes or different areas;(c) includes power to make consequential, incidental, supplementary, transitional, transitory or saving provision.(2) Regulations under this Part are to be made by statutory instrument.(3) A statutory instrument containing regulations under this Part is subject to annulment in pursuance of a resolution of either House of Parliament.”(11) The Norfolk and Suffolk Broads Act 1988 is amended in accordance with subsections (12) to (15).(12) In section 3 (the Broads Plan), after subsection (6) insert—“(7) The Secretary of State may by regulations make provision—(a) requiring the Broads Plan to contribute to the meeting of any target set under Chapter 1 of Part 1 of the Environment Act 2021;(b) setting out how the Broads Plan must contribute to the meeting of such targets;(c) setting out how the Broads Plan must further the purposes mentioned in subsection (8).(8) The purposes are the purposes of—(a) conserving and enhancing the natural beauty, wildlife and cultural heritage of the Broads;(b) promoting opportunities for the understanding and enjoyment of the special qualities of the Broads by the public; and(c) protecting the interests of navigation.”(13) In section 17A (general duty of public bodies etc)—(a) in subsection (1), for “shall have regard to” substitute “must seek to further”;(b) after that subsection insert—“(1A) The Secretary of State may by regulations make provision about how a relevant authority is to comply with the duty under subsection (1) (including provision about things that the authority may, must or must not do to comply with the duty).”(14) After that section insert—“17B Duty of public bodies etc to contribute to the Broads Plan(1) The Secretary of State may by regulations make provision—(a) requiring a relevant authority other than a devolved Welsh authority to contribute to the implementation or review of the Broads Plan;(b) setting out how such a relevant authority may or must do so.(2) In this section—“devolved Welsh authority” has the same meaning as in the Government of Wales Act 2006 (see, in particular, section 157A of that Act); “relevant authority” has the same meaning as in section 17A.”(15) In section 24 (orders and byelaws)—(a) in the heading, after “orders” insert “, regulations”;(b) in subsection (1), after “orders” insert “or regulations”;(c) in subsection (3), after “orders” insert “, regulations”.”Member’s explanatory statement
This amendment has been tabled following an undertaking given at Report stage and confers a power to require management plans relating to National Parks and AONB in England and the Broads to contribute to meeting targets under the Environment Act 2021, and to furthering the purposes of the protected landscapes. The clause also confers a power to require certain public bodies to contribute to preparing, implementing and reviewing such plans. The clause strengthens the duty on certain public authorities when carrying out functions in relation to these landscapes to seek to further the statutory purposes and confers a power to make provision as to how they should do this.
Member’s explanatory statement
This amendment is consequential on the amendment made to Clause 256 at line 26 on page 300.
Member’s explanatory statement
This amendment provides that new Clause (Protected landscapes), tabled in the Minister’s name and to be inserted after Clause 253, extends to England and Wales only.
Member’s explanatory statement
This amendment provides that new Clause (Protected landscapes), tabled in the Minister’s name and to be inserted after Clause 253, comes into force 2 months after Royal Assent.
“(e) the decision is made—(i) where the plant is a non-catchment permitting area plant, before the upgrade date, or(ii) where the plant is a catchment permitting area plant, before the applicable date.”Member’s explanatory statement
This amendment, which is consequential on amendments agreed at Report stage, amends the provision to be inserted into the Conservation of Habitats and Species Regulations 2017 by Schedule 16 so that provision functions in relation to catchment permitting areas.
Member’s explanatory statement
This amendment amends the long title to reflect the new Clause (Protected landscapes) tabled in the Minister’s name and to be inserted after Clause 253.
Earl Howe (Con)
My Lords, in begging to move that the Bill do now pass, I extend my thanks to all noble Lords who have contributed to a very detailed and proper scrutiny of this Bill. It is not possible for me to thank everyone individually, for which I hope I will be forgiven, but there are a few people I would like to mention specifically.
First, I am sure that the whole House will recognise and wish to thank my noble friend Lady Scott of Bybrook for the extraordinary amount of time and effort she has dedicated to the passage of this Bill, both inside and outside the Chamber. Her hard work and dedication have been an example to us all. It is equally appropriate for me to express gratitude to Opposition Peers, most notably the noble Baronesses, Lady Hayman of Ullock and Lady Taylor of Stevenage, on the Labour Front Bench and, for the Liberal Democrats, the noble Baroness, Lady Pinnock, and the noble Lord, Lord Stunell, in their turn. My noble friend Lady Scott and I are grateful to them all for the fairness and good nature of our engagement and debate throughout the Bill’s passage. That far-off halcyon time when the levelling-up Bill did not figure in their weekly workload must seem an aeon ago.
I also thank those on the Back Benches for their many constructive contributions, in particular my noble friends Lord Moylan, Lord Randall of Uxbridge, Lord Lansley, Lord Young of Cookham, Lord Lucas, Lord Caithness and Lord Trenchard, as well as the noble Baronesses, Lady Young of Old Scone, Lady Jones of Whitchurch, Lady Randerson, Lady Bakewell of Hardington Mandeville, Lady Jones of Moulsecoomb, Lady Bennett of Manor Castle and Lady Hayman, and the noble Lords, Lord Berkeley, Lord Hunt of Kings Heath, Lord Shipley, Lord Crisp, Lord Best, Lord Lytton and Lord Carrington—and there have been many others.
The House of Lords Public Bill Office, the House clerks and the Office of the Parliamentary Counsel also have my admiration and gratitude for their extraordinary hard work. Last, but certainly not least, I pay tribute to all the members of the Bill team. If ever there was a Bill team deserving of our fulsome thanks, it is this one. The team officials in DLUHC are those I principally have in mind, but many others from departments across government have made an invaluable contribution to the delivery of this Bill. Again, on my noble friend’s behalf and my own, I thank them all for their immense hard work, patience and professionalism over these many months.
This Bill creates the foundations and tools necessary to address entrenched geographic disparities across the UK. It is designed to ensure that this Government and future Governments set clear, long-term objectives for levelling up and can be held to account for its progress. The Bill devolves powers to all areas in England where there is demand for it, empowering local leaders to regenerate their towns and cities and restore pride in places. It also strengthens protections for the environment, making sure that the delivery of better environmental outcomes is at the heart of planning decision-making. I hope that we can all wish it a fair wind. I beg to move.
Lord Young of Cookham (Con)
My Lords, may I say on behalf of the whole House that my noble friend Lord Howe has also borne some of the burden of getting the Bill through? No one can say “No” more politely than my noble friend, as he has had to do to a large number of my amendments.
The only point I really want to make is this: I have done 49 years in Parliament and I have never known a Bill quite like this one. I wonder whether my noble friend can tell the House whether any lessons have been learned from the passage of this Bill—which I think has now taken 24 days in your Lordships’ House —against the background of yesterday when we were told that there will be yet another planning Bill to deal with infrastructure. I express the hope that the next Bill on planning is a little shorter than the one that is about to pass.
Earl Howe (Con)
My noble friend Lord Young can be assured that there will be an exercise to derive those lessons that we think are appropriate from the passage of this Bill. In many ways, I am sure noble Lords would agree that the House has done its work extremely well by its thorough examination of this lengthy measure. However, there may be issues that we can all agree should become the focus of future legislation of a similar kind. I am grateful to my noble friend for raising that question.